Institutional participatory processes are said to build up transparency in public decision-making (Fung 2009). They are envisioned to empower civil society and to transform top-down, often clientelistic relationships (Wampler 2004; Baiocchi et al. 2011; Bherer et al. 2016). However, empirical research have underscored that, quite often, these processes of institutionalization of citizen engagement led to (or reinforce) previous patterns of cooptation.
Cooptation has been frequently assessed in developing countries such as Brazil or México (Baiocchi et al. 2011; Montambeault 2011, 2012) in which clientelism is supposed to pollute many institutional processes (Auyero, 2001). Our paper analyzes (the occurrence of such) cooptation practices in a European country, Spain. Also, we analyze the question in the context of participatory mechanisms, that is, institutions which are intended to strengthen relationships with civic groups, including social movements. Does cooptation happen through participatory mechanisms? Which practices does it involve? In our study, the concept of cooptation is challenged by analizing the practices and processes associated to it.
For this purpose, we developed six case-studies and we performed cross-case analysis. Six cases were selected representing the most common participatory institutions: participatory budgeting and consultation councils. In these institutions, a variety of cooptation processes emerged including traditional organizations and new social movements. Specifically, we can distinguish four models: a) initial cooptation processes; b) political coalition dynamics; c) clientele maintenance; and d) resistance to cooptation. As our cases show, the type of social organization and the design of institutions is relevant to understand if cooptation processes develop further, or find strong resistance.